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# OAR Box 1790 Prepped by Keeia Richards



## Document

Number: 

# 227 ) ll-F-1 7
Docket Number: 

# A-90-3 7

Printed 10/31/200812:43:17

PM Sheet 227 of 250P. 2 03'16'9 5 15:3 7 ©20 2 20 8 162 0 WAS O NR.'AQ NP S AQMD-PP B )001'02 3



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# 7 Unite dState s Departmen t ofth e Interio r

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Kc NATIUNAf . PAl. KtiERVlCl . P. n RO Y 3712 7 Washington . D.C . 20013-7127 '



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SUBJECT : 

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REMARKS : 

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. .

I F YOUHAV E AN

YPROBLEM S WIT N

THI S FA

XORTROUBL E RECEIVINGA FA X PLEAS E CAL L TH E INDIVIDUAL FRO N WHOM YOUAR E RECEIVINGTH E FAX .
DENNIS , JOH N EADY , COLLETT E JOHNSTON , GARY KLIWINSKI , SHARO

N HALKIN , KARE N HCCLELLAND , LINDSA

Y NILLER , ABB Y PECK , DEBB Y 202-208-519 3 202-208-464 0 202-208-588 6 202-208-463 9 202-219-338 4 202-208-495 8 202-208-465 0 202-208-462 4 WAUCER , BIL L 202-219-338 6

WATKINS . WILN

A 202-208-491 3 WILSON , RITA

202-208-388 4



## ; EF AA. 3 DOCKE T .P. 3

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### 32 9 major modification , du e t o th e predicte

dambient concentratio

nfro m it s ow nemissions , woul db e requiredt o conduc t a Clas s I incremen t analyei c fo

r a givenpollutant , an dwhethe r th

e emission s of suc

hpollutant fro

m the propose d sourc e o

r modificatio

nwoul d b

e consideredt o contribut e t o a violatio nof th e applicabl e Clas s I increments . The propose

dsignificanc e level s fo r Clas s I increment s
wer e derive

d b y takin g fou r percent of th

e concentratio

n define dto r th e existin

g Clas s I incremen

t for eac

h applicabl e pollutant an d averagin

g pariod . Th

e EP A believe s tha t wher e a propose dsourc e contribute s les s tha nfou r percen t t o th

e Clas s I increment , it s projecte demission s
are sufficientl y

lo w s o as not t o warrant a costl y an d detaile d analysi s of th

e combine

deffect s o f th

e proposed
sourc e an

d al l other increment-consumin g emissions . The EP A previousl y

use d a simila

r rational e to establis hth e significant emission s rate s fo r PS D applicability purposes , concludin

g i npar t tha t emissions rate s whichresultedin ambient impact s les s tha nfou r percent of th

e 24-hou

r standard s fo

r particulat e matter an d so - wer e sufficientl y smal l s o a s t o b

e considere

d d e minimis . Se

g 4 5 P P 52676 , 52707-5270 8 (Augus t 7 , 1980) .

PRELIMINAR

YSTAT I WORKIM

GDRAFT TO

ROFFICE O

F MANAGEMEN

T AN D BUDGE T REVIE

W * DOB S NOT REPRESEN T OFFICIA

L IP A POLICY • • • November 16 / 199 4 — [filenam

e PR.EAM_l.116 ) •• •, EA .

03/16/9 5 15:3 S ©20 2 20 S 162 0 WAS O NR/A Q NP S -.-.-» AQMD-PP

B 000 3 '02 3 

# If tl> 

# y 

# - " "
Th e propose dsignificanc e levels , expresse di n/ig/Jn 3 

### , ar e t o b e compare dagains t a propose dsource' B predicte d ambien t concentration s i na Clas s I area . I nth e even t tha t th e predicte dconcentratio ni s les s tha nit s respectiv e significanc e level , th e source' s impac t wil l b e considere d insignifican t s o tha t n o furthe r analysi s o f clas s I increment s nee db e don e fo r tha t pollutant . I f a violatio n
o f a Clas s 1 incremen t i s know nt o exist , th e sourc e wil l
no t b e considere dt o contribut e th e violation. 3 4 

### Th e ErA emphasize s tha t thes e propose dsignificanc e level s fo r th e Clas s I increment s ar e ho t intende dt o serv e
a s threshold s fo r determinin g whethe r a nadvers e impact s o n
^ --•airly

AQRV wil l occur7~~ 7 Suc hadvers e impact s ma y ooou r a t concentration s belo w th e propose dClas s I incremen t Vi significanc e levels . / A determinatio ntha t a propose dsourc e

, • - U i ' •--- " i\ r A ^ 

### \i ' v>i i ma y hav e a nadvers e impac t onth e AQRV s o f a Clas s I are a •J , ;*- ' \j J 

### depend s upo nth e sensitivit y o f th e particula r Clas s I are a
an dinvolve s a nassessmen t o f actua l har m tha t wil l occur .

' Anambien t pollutan t concentratio ntha t i s deeme dt o b e o f relativel y

insignifican t consequenc e for purpose s o f 

# (4

36 

### I f ErA

o r th e stat e determine s tha t a Clas s I incremen t i s bein g violated , th e SI P mus t b e revise dt o correc t th e inadequacy . 4 0 CF R51.166(a)(3) . Thi s correctiv e actio ni s require d irrespectiv e o f an

y particula r source' s contributio nt o a Clas s I Incremen t violation . PRELIMINAR Y8TAF F WORKIN GDRAF T FO ROFFIC E O F MANAGEMEN T AN D BUDGE T REVIE W

* DOE S NO T REPRESEN T OFFICIA L SPA POLIC Y ** * Novembe r 16 , 199 4 — [filenam

e PREAM_1.116 ] ** *P. 5 0 3 '16/9 5 13:3 8 ©20 2 20 S 162 0

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33 1 

### incremen t consumptio nshoul dno t automaticall y b e considere d inconsequentia l relativ e t o th e inherentl y fact-speoifi o determination s upo nwhic hadvers e impac t finding s ar e t o b e based . Thus , th e fac t tha t a source' s predicte dambien t impac t i s les s tha nth e applicabl e Clas s T significanc e leve l doe s no t reliev e a permittin g authorit y o f th e dut y

t o conside r a FLM' s determinatio ntha t a propose dsourc e wil l hav e a nadvers e impac t onth e AQRV s i na Clas s I area . Th e EPA i s declinin g t o establis hsignificanc e level s _ fo r £-icJi*&rmf\yt&{

site-specifi c AQRVs . Th a FLM s ar a " * — , ^.^x. entruste dwit hprotectin g AQRV s an dth e decisio nt o \Um\c establis han

y appropriat e significanc e levels,fo r th e AQRV s Shoul dres t wit hth e FLM's* ' An y significanc e level s fo r """* ' &*•'* 7. AQRV s wil l necessaril y b o site-specifi c sinc e eac hAQR V and-''' 7 it s associate dcritica l pollutan t loading s ma y b e differen t fro m are a t o are a an

deve nwithi nindividua l Federa l clas s I
areas . n 

### , '-{-Jr*. "TW O <Uai^ r V'vC^ l .'<-- - 

### Th e EP A request s publi c commen t onJxt*. propose dClas s I incremen t significanc e levels . I nparticular , th e EP A request s commen t onth e level s propose dwhic har e fou r percen t o f th e applicabl e Clas s I increment . Th e F.P A realize s tha t Clae e I increment s ar e somewha t unique , relativ e t o th e othe r PS D increments , i ntha t the y hav e th e additional , independen t effec t o f determinin g wh o bear s th e PRELIMINAR YSTAF F WORKIN GDRAF T FO

ROFFIC E O F MANAGEMEN T AN D BUDGE T REVIEW

* DOE S NO T REPRESEN T OFFICIAL EP A POLIC Y <.* * Novembe r IS , 199 4 — [filenam

e PREA M 1.116 ] ** *P. 6

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### 33 2 burde no f proo f i

ndemonstratin

g th e presenc e or absenc e o f
a nadvers e impac t o

na n AQRV . 

### The EP A



### request s comment o n the appropriatenes s of establishin g significanc e level s for Clas s I increment s i nligh t of th e effoo t upo

nth e burdeno f proof .

5 . Clarificatio

nof Miscellaneou s Issues . Th e discussio

nwhic hfollow

s addresse s severa l relativel y

discret e issues . Th e EP A i s clarifyin

g curren t policy inarea s wher e -ther e i s significant confusio no r uncertainty

and , i nsom e instances , i s proposin g conformin

g change s t o th

e implementin

g regulations . Th

o EP A i e als o proposin

g change s tha t largel y codify existin

g policy . a . Significanc e Level s fo r NAAQ S an

dClaB S I I an

dII I Increment s The EP A i s proposin

g severa l change s t o the PS D regulation s at bot

hsectio

n51.16Gan

d sectio

n52.2 1 t o mak e th e rule s consistent wit hcurren

t practice . First , the EP A i s proposin

g t o revis e th

e provisions o f sectio n5l-l66(k )
an dsectio

n52.21(k ) t o clarif y tha t a source , itself , mus t make a significant contributio nt o a violatio

nof an y NAAQ S
o r PS D increment before tha t source woul db e denie da PS D permit . Second , th e EP A i s proposin

g t o incorporat e th e significanc e level s currently se t fort hinth e broade r PRELIMINAR

YSTAF F WORKIN

GDRAFT FO

ROFFIO E O F MANAGEMEN

T AN D BUDGE T REVIE

W • DOE S NO

T REPRESEN

T OFFICIA

L EP A POLIC Y ** • November 16 , 199 4 — [filenam

e FREAM1.116 ] •* *PT7_ 03'16/9 3 13:3 9 ®20 2 20 8 162 0

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33 3 preconstructio nreview permi t requirement s a t sectio n51.16 5 (b) 37 ~uec d t o determin e whethe r source s contribut e t o a violatio no f a NAAQS—s o tha t the y may b e directl y

applie d t o th e "significan t contribution " tes t in th e PS D regulations . Se e propose d sectio n51.166(b)(23 ) (iv )
an d sectio n52.21(b)(23)(iv) . Finally , th e EP

A i s proposing t o ad d significanc e level s fo r th e Clas s I I an d clas s II I increments , se e propose d sectio n51.166(b)(23)(v ) an d sectio n52.21(b)(23)(v) . Th e propose d level s ar e th e same
a s thos e level s whic hdefin e a significan t contributio nt o a
NAAQ S violation , an d simpl y

codif y

curren t EP A

polic y

whic h allow s th e significanc e level s fro m sectio n51.165(b ) t o b e directl y

applie d t o the PS D progra m t o determin e a significan t contributio nt u eithe r the NAAQ S o r PS D increments . Th e EP A request s commen t o nth e nee d t o includ e thes e significanc e level s inthe PS D regulation s an d th e
nee d fo r significanc e level s fo r Clas s I I and Clas a II I increments . Furthermore , th e EP A request s commen t o nth e

"Thes e preconstructio nrevie w permi t requirement s ar e designe d t o satisf y

th e requirement s o f sectionn o (a ) (2) (c ) o f th e Act , and whic haddres s a broade r category o f "major " stationar y source s (i.e. , in

nton s pe r year ) proposin g t o locat e i nanattainmen t o r unclassifiabl e area . Th e EP A ha s lon

q interprete d th e "significan t contribution " tes t se t fort hinthco c requirement s t o appl y t o PS D sources , a s well . PRELIMINAR YSTAF F WORKIN GDRAF T FO

ROFFIC E O F MANAGEMEN T AN D BUDGE T REVIE

W * DOE S NO T REPRESEN T OFFICIAL EP A POLIC Y ** * Novembe r 16 , 199 4 — [filenam

e PREAM_1.116 ] ** *P. 8 03'16'9 5 13:3 9 ©20 2 20 8 162 0 WAS O NR'A Q NP S -.-.- . AQMD-PP

B ® 007'02 3

33 4 propose dsignificanc e level s fo r th e Clas s l l an dClas s i n increments , specificall y whethe r the y

shoul db e lowe r tha n th e lcvcl c use d fo r NAAQ S compliance . b . Consideratio no f Hazardou s Ai r Pollutant s Th e NS RRefor

m subcommitte e raise da questio nabou t th e treatmen t o f hazardou s ai r pollutant s i nth e impac t analysi s fo r AQRVc . Sectio n112(b)(6 ) o f th e Ac t plainl y provide s tha t th e "provision s o f [titl e I, ] par t C (preventio no f significan t deterioration ) shal l no t appl y t o [hazardou s ai r pollutants ] liste dunde r [section112'].' " Thi s alteratio nt o th e PS D progra

m wa s addresse di nguidanc e issue do n Marc h11 , 199 1 (5 7 F R18070 , 18074-18075). M Th e obviou s congressiona l purpos e i nthi s exemptio nwa s t o substitut e th e provision s o f th e MAC T program i namende d ccotio n11 2 o f th e Act , an di nparticula r th e provision s fo r case-by-cas e MAC T fo r new an dmodifie d source s i nne w sectio n112(g) , fo r th e previousl y applicabl e PS D program . However , th e MAC T progra m doe s no t addres s th e specia l Clas s I are a protectio nconcern s tha t ar e th e subjec t o f portio n
o f th e PS D program . Th e EP A mus t b e mindfu l o f thi s fac t i n determinin g th e scop e o f th e sectio n112(b)(6 ) exemptio ni n

" Th e EPA

i s revising th

e PS D regulation s t o implemen t thi s chang e i nth e Ao t unde r separat e rulemaking . However , tha t rulemakin g doe s no t addres s the issue o f th e AQR V Impac t analysis . PRELIMINARYSTAF F WORKIN GDRAF T FO

ROFFIC E O F MANAGEMEN T A« D BUDGE T REVIE

W * DOB S NO T REPRESEN T OFFICIAL EP A POLIC Y 

## • • • Novembe

rits , 199

4 —( f lie n tun aPREAH_I.U6 ] 

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33 5 orde r t o avoi d creatin g a regulator y gap , a e ther e i s n o indicatio ntha t Congres s intende d suc ha result . Accordingly , th e EPA' s interpretiv e guidanc e indicate s tha t
an y hazardou s ai r pollutant s liste d insectio n11 2 o f th e Act , whic har e regulate d a s constituent s o f a mor e genera l pollutan t undo r othe r provision s o f th e Act , ouc ha s th e NAAQS , ar e stil l subjec t t o PS D a s par t o f th e mor e genera l pollutant . S_e

e 5 7 FRa t 18075 . A S such , althoug hhazardou s ai r pollutant s ar e no t directl y regulate d unde r th e PS D permittin g program , th e EP A believe s tha t th e impac t tha t
suc hhazardou s ai r pollutants , whic har e als o particulate s
o r voc' s o r constituent s o f an y othe r mor e genera l pollutant , woul d hav e o nAQRV s mus t b e addresse d i nth e impact s analysic . c . Analysi s o f Impact s o nFedera l Clas s I I Area s Today' s proposa l als o clarifie s tha t th e requiremen t fo r additiona l impac t analyse s a t sectio n51.166(o ) an d 52.21(o ) applie s t o Federa l Clas s I I areas . Th e analyse s require d unde r thes e provision s include s assessin g th e impairmen t o f visibility , soils , an d vegetatio ntha t woul d
occu r a s a resul t o f th e sourc e o r modificatio nan d genera l commercial , residential , industrial , and othe r growt h associate d wit hth e sourc e o r modification . Thus , unde r thes e propose d revisions , wher e a propose d sourc e o r PRELIMINAR YSTAF F WORKINGDRAF T FO ROFFIC E O F MANAGEMEN T AN D BUDGE T REVIE

W * DOE S NO T REPRESEN T OFFICIA L EFA POLIC Y ** * Novembe r 16 , 190 4 — [filenam

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### 33 6 modificatio nma y

impac t a Federa l Clas s I I area , th e additiona l impac t analyse s mus t asses s th e impact s o nth e
area , ge e propose dchang e t o sectio n5i.i66(.o ) (3 ) and sectio n52.21(o ) (3 ) . \h e propose dchang e als o specifie s tha t th e require danalyeie\inolud e consideratio no f
* potentia l impact s o nan y vegetatio nwjjic

nth e FL M

determine s y$*J\ t o b e 

### ° f significan t ecologica l &lue . I nexistin g

paragrap h(o)(1 ) i

nbot hset * o f PS D ^Regulations , th e owne r
o r operato r o f th e propose dne w o r modifie dcouro e i c no t require dt o provid-^a nanalysi s o f th e impac t o nvegetatio n havin g n o s'iajrl

f lean t commercia l o r recreationa l value . Thus , the^ropoRe dlanguag e woul daffirmativel y clarif y

tha t th a existin g exemptio ndoe s no t exalud e th e analysi s ^of impact s onvegetatio nconsidere dt o b e animportan t resc\rc e / i nFedera l Clas s I an dI I areas . / 

### d . Clarificatio no f PJ5 D Requirement s Applicabl e t o Land s withi nth e Exterio r Boundarie s o f Reservation s Redesignate da s clas s I Area s individua l CAAAc member s an dTriba l representative s hav e aske dth e EPA

t o provid e guidanc e o nth e PS D provision s tha t appl y

t o reservatio nland s tha t ar c redesignate db y India nTribe s a s Clas s I areas . I nparticular , question s hav e bee nraise da s t o whethe r AQKV' S 

### ma y b e establishe dfo r suc hland s an

dho w thes e value s ar e t o b e protecte dunde r PRELIMINAR YSTAF F WORKINGDRAF T FOROFFIC E O F MANAGEMEN T AN D BUDGE T REVIEW

• DOE S NO T REPRESEN T OFFICIA L EPA POLIC Y ** * Novembe r 16 , 199 4 — [filenam

e PRBA M 1.116 ] ** *P.1 1

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] 01 0 '02 3

33 7 th e PS D program . Th e discussio nbelo w i s intende d t o clarif y

th e EPA' s view s o nthes e issue s an

d t o describ e th e accompanying , largel y technical , regulator y revision s tha t th e EP A

i s toda y

proposing . Relevan t provision s o f th e PS D classificatio nschem e ar e als o describe d below a s 

### background . (1 ) Designatio nan d Redesignatio no f Clas s I Area s Nationa l park s greate r than600 0 acre s insize , nationa l wildernes s area s greate r than500 0 acre s i nsiz e
an d othe r area s specifie d i nsection162(a ) o f th e Ac t ar e designate d a s Clas s I areas . Thes e Federa l land s ma y no t b e redeeignatc d a s an y othe r classificatio nan d ar e therefor e "mandatory " Federa l Clas s I areas . initially , al l othe r PS D areas 3 9 inth e countr y wer e designate d a s Clas s I I areas . S.e e th e Act , sectio n162(b) . State s hav e broa d discretio nt o redesignat e Clas s I I area s
a s Clas s I . Se e th e Act , section154 . Specia l provision s addres s an

y potentia l Stat e redesignatio ntha t include.- ; Federa l lands . Fo r example , sectio n164(b)(1)(B ) o f th e Ac t require s State s t o provid e prio r notic e t o th e appropriat e FLM an d anopportunit y

fo r th e FL

M t o confe r an

d offe r writte ncomment s an d recommendations .
"PS Darea s ar e area s designate d pursuan t t o sectio n10 7 o f th e CA A a c "attainment " or "unclassifiable. " CA A S 161 . PRELIMINARYSTAF F WORKIN GDRAF T FO

ROFFIC E O F MANAGEMEN T AN D BUDGE T REVIEW

* DOE S NO T REPRESEN T OFFICIAL EPA POLIC Y
• • • Novembe r16 , 199 4 —[filenam e PREAM_I.U6 ] •• •_____ _P.1 2

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33 8 Seotio n164(d ) o f th e Ao t als o direct s th e FLM' s t o review al l nationa l monuments , primitiv e areas , an d nationa l preserve s an

d recommend appropriat e area s fo r redesignatio n
a s Clas s I area s wher e AQRV s ar e importan t attribute s O f th e area . Se e th e Act , sectio n164(d) . Th e FLM' s ar e directe d t o repor t thei r recommendation s t o Congres s an d th e affecte d States , afte r firs t consulting wit hth e States . certai nFedera l land s currentl y designate d clas s I I ma y onl y b e redesignate d a s Clas s I . Thes e particula r Clas s T I "floor " area s includ e nationa l monuacrrto , nationa l primi-tiv e
areas , nationa l preserves , nationa l recreatio nareas , nationa l wil d an

d sceni c rivers , nationa l wildlif e refuge s
an d nationa l lakeshore s or seashore s whic hexcee d 10,00 0
acre s i nsiz e an

d nationa l park s an d wildernes s area s establishe d afte r Augus t 7 , 197 7 whic hexcee d 10,00 0 acre s i nsize . n&& th e Act , sectio n164(a) . Sectio n164(c ) o f the Ac t als o give s federally " recognize d India nTribes 4 0 broa d authorit y t o redesignat e land s withi nth e exterio r boundarie s o f reservation s a s Clas s I areas . Severa l IndianTribe s hav e already redesignate d land s withi nreservatio nboundarie s a s Clas s I
areas . Th e Norther nCheyenn e India nReservation , th e
*°Th c Departmen t o f Interio r periodicall y publishe s a lis t o f Federally-recognize d Tribes . s.« s 5 8 F R5436 4 (Oct . 21 , 1993) . PRELIMINAR YSTAF F WORKIN GDRAF T FO

ROFFIC E O F MANAGEMEN T AN D BUDGE T REVIEW

* DOE S NO T REPRESEN T OFFICIAL EPA POLIC Y ** * Novembe r 16 , 199 4 — (filenam

e PREAM_1.116 ] ** *_^___

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33 0 Flathea d India nReservation , the For t Pec k India n Reservatio nan

d th e Spokan e India nReservatio nhav e bee n redesignate d a s Clag s I area s fo r th e purpose s o f th e PS D program . S_

_section s 52.1382(c ) an d 52.2497 . (2 ) Statu s c f AQR V Protectio nfo r Land s Redesignate d
a s clas s I Area s Th e Ac t provide s specia l protectio nfo r th e "natura l values " o f "nationa l resource[c]. " S . Rep . No . 127 , 95t h Cong. , 1s t Sess . 3 4 (1977) . Thes e area s ar e the "federally-owne d clas s I areas. " s . Kep . NO . 12 7 a t 34 . Th e FL M an d the Federal , officia l charge d wit hdirec t responsibilit y

fo r th e managemen t o f cuc hland s hav e a n affirmativ e responsibilit y t o protec t th e AQRV s o f suc h lands , se e th e Act , sectio n165(d)(2)(B) . A e describe d previously , a PS D permi t shal l no t b e issue d i f a propose d couro c wil l hav e anadvers e impac t on
an y AQR V i na Federal, , Clas s I area . T*h e burde no f proo f fo r demonstratin g th e presenc e o r absenc e of \ a nadvers e impac t i s determine d b

y th e Clas s I increments . \ha t is , i f a propose d sourc e o r modificatio ndoe s no t contribut e t o a violatio no f a Clas s I increment , the FL M bearsNth e burde n
o r demonstratin g tn e presenc e o f anadvers e impact s Conversely , i f the propose d sourc e o r modificatio nd c contribut e t o a violatio no f a Clas s I increment , th e burde n PRELIMINAR YSTAF F WORKIN GDRAF T FO

ROFFIC E O F MANAGEMEN T AN D BUDGE T REVIE

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e PREA M 1.116 ] •* «P.1 4

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34 0
o f demonstratirrg . th e absenc e o f anadvers e impac t o na nAQR V lie s wit hth e sourctlKpwner/operator . Thes e provision s d o not , however , appl y t o reservatio nlands . Federally-recognize d Tribe s ma y establis hAQRV s fo r land s whic hthe y

redesignat e a s Clas s I area s i f the y s o desire . Mofeover , th e Tribe s ma y protec t suc hAQRV s throug ha specia l disput e resolutio nprovision , no t throug h th e specifi c authorit y tha t i s conferre d o nFLM' s t o protec t it^^jhr^j Federa l Clas s I arca c I f a federally-recognize d India n Trib e determine s tha t a propose d PS D permit , i na Stat e wil l
caus e o r contribut e t o a violatio no f a clas s l incremen t o n it s reservation , th e Trib e ma y reques t tha t th e Administrato r ente r int o disput e resolutio nnegotiation s wit hth e partie s involved . gt? e th e Act , sectio n164(e ) [als o 4 0 CF Rsectio n52.2i(t)]. ' I f requeste d b y th e Tribe , th e Administrato r mus t mak e a recommendatio nt o resolv e th e disput e an

d protec t th e AQRV s o f th e land s involved . Tribe s ma y

therefor e establis hAQRV s fo r thei r land s
and ma y

protec t thos e value s b y invoking th e EPA' S involvemen t i nPS D permi t dispute s a 6 provide d i n sectio n164(e ) o f th e Aot . Th e Ao t als o allow s State s t o similarl y

invok e thes e disput e resolutio nprovisions . T o clarif y

thes e is&ues , th e EP A i s proposin g definition s o f th e term s "Federa l clas s I area " an d PRELIMINARYSTAF F WORKIN GDRAF T FO

ROFFXC S O F MANAGEMEN T AMD BUDGE T REVIE

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3 4 1 "mandator y

Federa l clas s I area, " an d i s makin g necessar y implementin g change s t o section s 51.16 6 an d 52.21 . Th e disput e resolutio nprovisio ni s currentl y codifie d a t ' sectio n52.2i(t) ; however , n o simila r provisio ni s currentl y containe d i nth e Par t 5 1 PS D regulation s applicabl e t o Stat e PS D programs . Therefore , the EP A i s today

proposin g tha t th e disput e resolutio nprocedure s se t fort hi nth e Ac t b e adde d t o sectio n51.166 . Se e propose d sectio n5i.i66(t) . Th e EP A request s publi c comment s o nthe preceedin g discussio naddressin g whethe r AQRV s ma y b e identifie d fo r redesignate d Clas s I area a within•th e exterio r boundarie s o f
a reservatio nan

d addressing th e manne r i nwhic hsuc hValue s
ma y b e protected . Th e EP A als o request s comment s o nth e propose d definition s t o reflec t th e resultin g distinction s betwee nmandator y Federa l Clas s I areas , Federa l Clas s I
area s an

d "non-Federal " Clas s I area s (i.e. , no t unde r th e jurisdictio no f a FLM) . 6 . Strategie s t o Addres s th e Impao t o f Existin g Source s o

nClas s I Areas . A s noted , the CAAAC' s NS Rsubcommitte e ha s discusse d
an d identifie d severa l different , option s t o addres s th e impact s ontha AQRV s o f Clas s I area s attributabl e t o existin g sources . Whil e the Subiunuuittee ha s no t mod- a specifi c ieuonunendf.ti.iens . Jft e option s &. identifie d wer e PRELIMINAR YSTAF F WORKIN GDRAF T FO

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34 2 generall y

directe d a t the followin g ai r quality-relate d problem s i nClas s I areas : (1 ) regiona l viaibilit y impairment , (2 ) aci d deposition , and (3 ) ozon e damage . Th e EPA

ha s recentl y

identifie d strategie s tha t i t intend s t o pursu e ove r th e nex t fe w year s t o protec t and improv e ai r qualit y

i nFedera l Clas s I areas . Thes e strategies , a s describe d below , focu s primaril y o nth e contributio n existin g source s mak e t o Federa l Clas s I are a ai r qualit y deterioratio nan

d addres s th e thre e majo r area s o f concer n identifie d b

y th e Subcommittee . A s noted , th e Ac t call s fo r th e Grand Canyo nVisibilit y Transpor t Commissio nt o issu e a repor t t o th e EP A b y Novembe r 199 5 tha t examines , among othe r measures , th e promulgatio no f regulation s establishin g lon g rang e strategie s for addressin g regiona l haze . T o b e prepare d t o
mov e expeditiousl y onc e th e EP

A receive s thes e recommendations , th e EP A plan s t o initiat e th e technica l activitie s neede d t o analyz e the appropriat e scop e and component s o f a regiona l haz e rulemaking . Thus , th e EPA' s immediat e effor t vil l focu s o n developin g th e technica l tool s fo r regiona l haz e planning . Th e nex t ste p wil l entai l developmen t o f polic y option s fo r addressin g regiona l haz e an d wil l involve consideratio no f th e Grand Canyo nVisibilit y Transpor t commission' s PRELIMINAR YSTAF F WORKIN GDRAF T FOROFFIC E O F MANAGEMEN T AN D BUDGB T REVIE

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34 3 

## / M*tf' £ <7Ls *<•,•_/ recommendation c an

dth e wor k o f th e Souther nAppalachia n/$/,,. , u

Th e EPA wil l continu e t o activel y implemen t th e aci d rai nprogram

unde r Titl e I V

o f th e Act / Ful l implementatio n
o f th e nex t phas e o f th e aci drai ncontro l program wil l b e a majo r ste pi nimprovin g visibilit y i nEaster nClas s I areas , andreducin g deposition-relate ddamage . Th e EP A plan s t o addres s ground-leve l ozon e damag e t o Clas s I are a ecosystem s b y incorporatin g th e technica l informatio nrelevan t t o suc hdamag e int o it s ongoin g revie w
o f th e ozon e NAAQS . Th e EP A i s als o explorin g th e efficac y
o f a short-term

nitroge noxide s incremen t t o addres s th e ecosystem

effect s o f nitroge nloadin g an dpotentia l ozon e formation .

. !
_ i 7 . informatio nclearinghous e (Clas s I areas) . r- Th e CAAAC recommende dtha t th e EP A establis ha clearinghous e o f informatio nabou t Clas s I areas . Th e EPA '. A —is currentl y workin g o na clearinghous e projec t t o b e

' c 

### incorporate dint o th e EPA' s publi c NS Rbulleti nboar d

(NS RBB ) whic hi s hoste db y th e Offic e o f Ai r Qualit y Plannin g andStandard s (OAQPS ) Technology Transfe r Networ k (TTN) . User s o f th e NS RB B may searc hfor , retrieve , the n
rea dand/o r downloa dful l tex t o f recen t polic y andguidanc e material . Th e user s may als o solici t fro

m o r provid e t o PRELIMINAR YSTAF F WORKINGDRAF T FO ROFFIO E O F MANAOEMEN T AN D BUDGE T REVIEW

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34 4 othe r partie s i nth e NS Rpermittin g community , informatio n pertainin g t o area s o f interes t withi nNSR . Anothe r NS RB B reside s o nth e Permit s Program s Bulleti n Boar d Syste

m (PP BBS) . Th e P P BB S versio nwa s designe d primaril y

fo r us e b

y th e EPA

Headquarters , th e EPA Regiona l Offic e Staff , an

d othe r Federa l an d Stat e agencies . However , th e P P BB S i s als o accessibl e t o th e public . Th e P P BB S provide s th e sam e function s availabl e o nth e TT N version , bu t ha s mor e sophisticate d searchin g capability . Th e "EP A i s expandin g th e NS Rbulleti nboard' 6 capabilit y

i ntw o respect s t o addres s th e CAAAC' s recommendations . First , consisten t wit hth e propose d requiremen t t o improve permitting authorit y an d FLM coordination , describe d i npar t v.c.l. , above , a featur e shal l b e installe d exclusivel y fo r postin g notic e o f constructio npermi t application s b y permittin g authoritie s t and/o r NS Rpermi t applicants . Al l FLM s wil l hav e acces s t o th e database . Thi s segmen t o f th e NS RB B wil l serv e a s a 

# A ' 

# , v fac t shee t i ntha t i t wil l provid e very basi c sourc e information , suc ha s th e name an d typ e o f source , it s locatio nvi a UT M

coordinates , th e distanc e betwee nth e propose d sourc e an d al l Clas s I area s withi n50 0 km , th e propose d emissio nrat e or ne t emission s increas e o f eac hai r pollutan t associate d wit hth e project . I t als o wil l allow PRSLZMINAB YSTAF F WORKIN GDRAF T FO

ROFFIC E O F MANAGEMEN T AN D BUDGE T REVIEW

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/ 34 5

permit , applicant s an d permittin g authoritie s t o addres s question s t o FLM s regardin g ai r qualit y issue s relativ e t o Federa l land s tha t may b e affecte d b

y the propose d ne w o r increase d emissions , and, , conversely , a contac t t o who m th e FLM s ma

y direc t inquirie s an d information . Se e propose d sectio n51.166(n)(5 ) sectio n52.21(n)(5) . Second , a dat a bas e addressin g Clas s I area s shal l b e 7availabl e (initiall y o nthe P P BBS ) i nwhic hFLM s and th e \r-0A- 1 '' ys.rrEP

A wil l pos t th e following informationa s i t become s availabl e relativ e t o Clas s I are a protection :

. -Boundarie s an

d siz e o f existing Federa l Clas s I area s -Area-specifi c AQR V information , includin g sensitiv e

' receptors , curren t emissio ninventorie s an d curren t an

d critica l loadings , existing advers e conditions ; -Source-specifi c informatio no nincremen t consumptio n
an d impact s o

nAQRV s i nspecifi c Federa l Clas s I
areas ; -Report s o f researc han d investigation s abou t th e impact s o f ai r pollutio no nClas s I are a resource s and contac t person s fo r furthe r information ; -Commen t letter s an d advers e impac t finding s issue d relativ e t o specifi c draf t PS D permits ;

PRELIMINARYSTAF F WORKIN GDRAF T FO

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. 34 6 -Adjudicativ e appeal s an d correspondin g order s fro m th e EPA Environmenta l Appeal s Board an d cour t decision s relativ e t o Clas s I are a issues . Al l user s o f th e NS RB B wil l b e abl e t o downloa d al l th e document s poste d i nthi s portio no f th e dat a base . vi . Preventio no f signiflean t Deterioratio n Preeonatructio nMonitorin g Prcoonstruetio nmonitorin g requirement s fo r PS D source s
ar e se t fort hi nsectio n52.21(m ) fo r Federa l a s wel l a s stat e delegate d permi t program s an d i nsectio n5i.i66(m ) to r Stat e adopte d programs . I nbot hset s o f regulation s th e monitorin g provision s generall y requir e tha t anapplioan t fo r a new

majo r sourc e o r majo r modificatio nsubmi t wit hth e applicatio non e yea r o f continuou s ai r qualit y dat a fo r th e perio d precedin g th e applicatio nsubmittal . Thes e requirement s ste

m fro m section s 165(e)(1 ) and (c)(2 ) o f th e Act . i nsectio n165(e)(1) , Congres s require d fo r eac hPS D
sourc e a preconstructio nanalysi s "o f th e ambien t ai r qualit y

a t th e propose d sit e an d i nth e are a whic hma y b e affeote d b

y th e emission s fro m suc ha facilit y

fo r oao h pollutan t subjec t t o regulatio nunde r thi s Ac t whic hwil l b e

PRELIMINARYSTAF F WORKIN GDRAF T FO

ROFFIC E O F MANAGEMEN T AN D BUDGE T REVIEW

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### 34 7 emitte d fro

msuch facility." 4 1 

### Additionally , sectio n 165(e)(2 ) require s tha t th e analysi s "shal l includ e continuou s ai r qualit ymonitoring dat a gathere d fo r purpoeo c
o f determining whethe r emission s fro msuc h facilit ywil l
excee d th e maximu

mallowabl e increase s o r maximu mallowabl e concentration s permitte d unde r thi s part. " Further , sectio n 165(e)(2 ) provide s tha t dat a fo r th e analysi s shal l b e gathere d ove r a perio d o f one calenda r yea r preceding th e applicatio n o r fo r a shorte r perio d i f a SLat e allow s i t accordin g t o the EP Aregulations
. O n Jun e 19 , 1978 , the FP Apromulgate d regulation s whic h require d a sourc e t o submi t a monitoring analysi s an d dat a collectio n onl yfo r thos e pollutant s emitte d b yth e sourc e whic h woul d impac t a n existin

g NAAQS
. Monitorin g wa s no t require d t o determin e whethe r th e sourc e woul d caus e o r contribut e t o a violatio n o f a PS D inorcment
. Th e Unite d State s Cour t o f Appeal s fo r the Distric t o f Columbi a Circui t i n Alabama Powe r Co
. v . EF Afoun d th e Jun e 19 , 197 8 regulatio n t o b e deficien t i n tha t i t di d no t provid e fo r continuou s preconstructio n monitoring fo r purpos e o f

* ' Th e 199 0 CA

AAmendment s i n sectio n 112(b)(6 ) exempt s th e lis t o f hazardou c ai r pollutant s in sectio n 112(b)(1 ) fro man y requirement s impose d b yPar t C
. Therefore , thos e pollutant s ar e n o longe r considere d regulate d pollutant s wit h respec t t o th e PS D r u 1 ef-
. 

### PRELIMINARY STAF F WORKIN G DRAF T FO

R OFFIC E O F MANAGEMENT AN D BUDGE T REVIE W • DOE S NO T REPRESEN T OFFICIA

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34 8 determinin g impaot s o nbot hNAAQ S and increments . O n Augus t 7 , i960 , th e EF A correcte d the deficienc y b y promulgatin g th e curren t rule s i npart s 5 1 and 5 2 coverin g preconstructio nmonitorin g requirements . Th e EP A

argue d i nth e Alabam a Powe r cas e tha t monitorin g ai r qualit y concentration s wa s technologicall y infeasibl e fo r al l bu t a smal l numbe r o f pollutant s and tha t th e the ncurren t monitorin g technique s wer e a t bes t o f questionable accurac y evenfo r th e relativel y straightforwar d measuremen t o f whethe r e napplicabl e NAAQ S ha s bee nexceeded . Th e Cour t i nrejectin g th e EPA' S argument s o nthi s matte r sai d tha t the statut e clearl y require d monitorin g fo r determinin g whethe r PS D increment s woul d b e exceeded . Th e Cour t discerne d i nth e Ac t tha t Congres s ha d a technolog y forcing inten t i nrequirin g suc h monitoring . Congres s intende d "tha t th e employmen t o f modelin g technique s b e hel d t o eart hb y a continua l proces s
o f confirmatio nan d reassessment , a proces s tha t enhance s confidenc e i nmodelin g a s a mean s fo r realisti c projectio n
o f ai r quality. " 63 6 F.2 d a t 372 . However , th e Cour t added , "[o] f cours e eve na congressiona l mandate , suo ha c a technology-forcin g requiremen t base d ona congressiona l projectio no f emergenc e o f technology fo r th e future , i s subjec t t o a Justifie d excus e fro m complianc e wher e good PRELIMINAR YSTAF F WORKIN GDRAF T FO

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34 9 fait heffor t t o Compl y ha s no t h-wa

nfru,tfn l n f results.! ' Id . (emphasi s added) . Th e Cour t pointe d ©u t tha t suc ha legitimat e "excuse " ha d no t bee npresente d i nth e case , i n whic hth e EPA ' exempte d source s fro m preconstructio n monitorin g fo r PS D increment s base d upo ncurren t technologica l infeasibility . Th e Court' s opinio nthu s allow s th e EPA , afte r a n additiona l fiftee nyear s o f experienc e unde r th e PS D program sinc e Alabam

a Powe r t o foreg o requirin g stric t complianc e wit hth e requirement s o f sectio n165(e)(2 ) wher e a good fait heffor t i npreconstructio nmonitorin g ha s faile d i n producin g fruitfu l results . Sinc e th e Court' s decision , severa l ai r qualit y dispersio nmodel s hav e bee nimprove d i naccurac y o r othe r
mor e accurat e model s hav e bee ndevelope d suc htha t th e EP A i nit s Guidelin e Ai r Qualit y Model s doe s no t permi t calibratio no f suc hmodel s b y usin g site-specifi c ai r qualit y

data . Wher e suc hmodel s ar e employe d t o analys e th e impac t o f a propose d source , th e collectio no f preconstructio nai r qualit y dat a i s generall y o f n o us e excep t i nth e narro w situatio nwhe nne w constructio ni s propose d i nanare a whic hi s isolate d fro m othe r interactin g
sources . Wher e ther e i s n o representativ e backgroun d dat a

PRELIMINAR YSTAF F WORKIM GDRAF T FO

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# ,y^f^y£7fj^' « S</J 

# ^^

usafu l i n 

# ^ C^*hJlfcf)^ available , preconstructio nmonitorin g canb e usefu l i n establishin g background ai r quality . Th e EP A believe s tha t i t i s appropriat e t o reevaluat e th e regulator y

requiremen t fo r preconstructio nmonitorin g fo r propose d PS D constructio nwher e the ai r qualit y dat a cannot/feasibl y

Nb e use d intha analysi e o f a source' s impac t j upo nai r qualit y standard s accordin g t o th e EPA rule s and / guidance . Th e preconstructio nmonitorin g requiremen t

' obligate s a considerabl e amoun t o f a napplicant' s resource s
an d ofte nresult s insignifican t tim e delay s inoubmittin g it s permi t application . Th e EP A i a therefor e requestin g publi c commen t onth e appropriatenes s o f providin g a regulator y

exemptio nfo r som e case s fro

m PS D preconstructio n monitoring . An

y comment s shoul d identif y th e ciroumetance s wher e anexemptio ni e appropriate , an d wher e i t i s i inappropriate . Wher e possible , comment s accompanie d shoul d l b e accompanie d b y technica l an

d lega l justificatio nfo r providin g anexemption . Recommendation s fo r oontinuin g preconstructio nmonitorin g shoul d b e accompanie d wit hd descriptio no f th e environmenta l benefi t o f suc hsourc e specifi c monitorin g i t possible .

PRELIMINARYSTAF F WORKIN GDRAF T FO

ROFFIC E O F MANAGEMEN T AN D BUDGE T REVIE

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